feature

Managing Flood Problems

In Malaysia
By Ir. Chia Chong Wing, Deputy Director, Bahagian Saliran dan Tebatan Banjir

alaysia
has
an
equatorial climate
with constant high
temperatures and high
relative humidity. The climate is
influenced by the northeast and
southwest monsoons. The former,
prevailing between November and
February, brings heavy rainfall (as
much as 600 mm in 24 hours in
extreme cases) predominantly to the
east coast of Peninsular Malaysia and
to Sabah and Sarawak. Rain bearing
winds also comes with the southwest
monsoon from April to September,
though rainfalls during this period are
generally less than during the
northeast monsoon. There are, in
addition, two transitional periods
between the monsoons (intermonsoon) when convectional
thunderstorms are common.
The annual average rainfall is
2,420 mm for Peninsular Malaysia,
2,630 mm for Sabah and 3,830 mm
for Sarawak, with heavier
precipitation recorded in the east
coast of Peninsular Malaysia and the
coastal regions of Sabah and
Sarawak.
There are two basic types of
rainfall causing flooding viz. (i)
moderate intensity, long-duration
rainfall covering a wide area; and (ii)
high intensity, short-duration
localised rainfall. In addition, flood
records indicate that there is a
seasonal pattern of flood occurrences.
The east coast and the southern part
of Peninsular Malaysia, Sabah and
Sarawak are mainly affected by floods
during December to January when the
northeast monsoon is prevailing.
Flooding occurs due to widespread
prolonged heavy rainfall resulting in
a large concentration of runoff which
is very much in excess of the

capacities of streams and rivers.

Extensive areas are often inundated.
The west coast of Peninsular
Malaysia, on the other hand, is mainly
affected from September to November
during the inter-monsoon period
when convectional thunderstorms
become prevalent. Such storms bring
short but very intense rainfall, which
severely overloads the drainage
systems, causing localised flash
floods.

MAJOR FLOOD EVENTS AND

CAUSES OF FLOODING

Several major floods have been

experienced in the last few decades.
As far back as 1886, a severe flood
with gale-force winds caused extensive
damages in Kelantan. The flood of
1926, supposedly the worst in living
memory in Malaysia, affected most of
Peninsular Malaysia, resulting in
extensive damages to property, road
systems and agricultural land and
crops. In 1967, disastrous floods
surged across the Kelantan,
Terengganu and Perak river basins,
taking 55 lives. A few years later, in
1971, a catastrophic flood swept across
many parts of the country. Pahang was
severely affected, suffering great
economic losses in the form of
property and crops, as well as a death
toll of 24. Kuala Lumpur, the Federal
capital, suffered equally the wrath of
the flood, an incident that
overshadowed all past memories of
floods in Malaysia.
Flood occurrences seem to be
getting more frequent in recent years,
especially in some cities like Kuala
Lumpur, Penang and Kuching where
rapid urbanisation is taking place.
The main causes of flooding in
Malaysia are as follows:

BULETIN INGENIEUR

38

Loss of flood storage as a result

of development extending into
and taking over flood plains and
drainage corridors
Increased runoff rates due to
urbanisation
Inadequate drainage systems or
failure of localised drainage
improvement works, extended
insufficiently downstream
Constriction at bridges and
culverts that are either
undersized or partially blocked
by debris build-up or from other
causes
Siltation in waterway channels
from indiscriminate land
clearing operations
Localised continuous heavy
rainfall
Tidal backwater effect
Inadequate river capacity

FLOOD CONTROL MEASURES

Following the disastrous 1971
flood, the Government took several
positive steps to deal with the flood
problem. Among these were:

Establishment of the Permanent

Flood Control Commission
Establishment of flood disaster
relief machinery
Implementation of structural
measures
Implementation of nonstructural measures
Setting up of flood forecasting
and warning systems
Carrying out of river basin
studies and preparation of
drainage master plans for major
towns
Setting up of a nationwide
network of hydrological and
flood data collection stations

To take measures for flood control

and to reduce the occurrence of
floods
In the event of floods, to minimise
damage and loss of life and
property

The main objective of the Flood

Commission is prevention rather than
cure. Since its inception, the
Commissions recommendations of
projects for flood control have been
made with the overall view of meeting
the objectives of the New Economic
Policy of eradicating poverty and
restructuring society. The Commission
is presently chaired by the Honorary
Minister of Agriculture with the
Drainage and Irrigation Department
(DID) acting as the Secretariat. (In
2004, due to the recent Cabinet
decision of placing DID under the
newly formed Ministry of Natural
Resources and Environment, it is
envisaged that the chairmanship of
the Commission will be transferred to
the new Minister of Natural Resources
and Environment.)

Flood Disaster Relief Machinery

This machinery was established
with the objective of co-ordinating
relief operations at the Federal, state
and district levels so that assistance
can be provided to flood victims in
an orderly and effective manner.
Overall, the coordination of relief
operations is the responsibility of the
Natural Disaster Relief Committee.
This committee is headed by the
Minister of Information with its
secretariat at the National Security
Council. The committee is
empowered, among other things, to
declare any district, state or even the
whole nation to be in a state of
disaster so as to be eligible for getting
financial assistance from the Federal
Government for remedial works in
addition to the allocation of funds
under the operation budget. Members
of this Committee include
Government departments/agencies
and social organisations which
provide shelter, rescue and food
supplies in case of disaster. At least
once a year, normally before the
northeast monsoon, the Committee
will meet to ensure that its machinery
will run smoothly.
River Basin Studies
The objective of river basin studies
is to draw up appropriate flood maps
and also feasible projects for the
respective basin areas so that their
development is properly managed and
that water resources management,
including flood control measures, is

BULETIN INGENIEUR

39

effective and well-controlled. These

studies recommend the optional flood
control planning and design criteria
for the respective basins. Generally,
socioeconomic considerations for
the basin will dominate the design
criteria.
Since 1972, a number of river
basin studies have been carried out
for rivers where major flood problems
exist. The objective of these studies
is to draw up master plans for water
resources development, and measures
for flood mitigation form an
important component. To date, more
than 26 river basin studies have been
completed, including Kuala Lumpur
(1974 and 2002), Pahang River (1974),
Kelantan River (1978 and 1989),
Terengganu River (1978), Limbang
River (1978), Kinabatangan River
(1982), Samarahan River (1983), Batu
Pahat River (1984), Johor River
(1985), Golok River (1985), Besut
River (1988), Klang River (1978,1989
and 1994), Menggatal, Sabah (1999),
Miri Flood Diversion (2000), Linggi
(2000), Selangor River (2000), and
Bernam (2001).
Realising the need for a long-term
water resources development strategy
and master plan, the Government has
carried out a National Water
Resources Study (1982) to develop a
comprehensive and coordinated water
resources development programme
for the country. The study has
formulated a long-term plan for flood
mitigation works in various floodprone areas in the country. This
includes improvement of 850 km of
river channels, construction of 12
multi-purpose dams, 82 km of flood
bypass, 12 ring bunds around urban
centres, and resettlement of about
10,000 people in flood-prone areas.
The whole plan was estimated to cost
RM2.55 billion (1982 estimate) over
a period of 20 years and will provide
protection to some 1.8 million people.
(However, the cost for future flood
mitigation works is now estimated to
be in the region of RM17 billion for
the next 15 years and the estimated
number of people affected by flooding
has now risen to 4.82 million.)
A number of studies have also
been carried out with the aim of
alleviating flood problems in various
locations in the country. These include

feature

Permanent Flood
Control Commission
The Permanent Flood Control
Commission was established by a
Cabinet decision on December 21,
1971 to study short-term measures to
prevent the occurrence of floods and
long-term measures for flood
mitigation. The Commission, in its
first sitting, drew up the following
terms of reference:

feature

the Cukai Flood Mitigation Study,

Lower Perak Flood Mitigation Study
and the Kangar Flood Mitigation
Study, as well as drainage master plan
studies for the towns of Butterworth
and Bukit Mertajam, Kuala Lumpur,
Alor Setar, Sandakan/Tawau/Kota
Kinabalu, Bintulu, Johor Bahru,
Kelang and Port Kelang, Seremban,
Melaka, Kuantan, Kota Bharu, Kuala
Terengganu, Port Dickson, Raub,
Kerteh, Teluk Intan, Penang,
Langkawi, Batu Pahat, Sungai Petani,
Kuching, Ipoh and the Multimedia
Super Corridor (MSC).

Malaysia Plan (1981-1985) with

RM141 million, the 5th Malaysia Plan
(1986-1990) with RM155 million, the
6th Malaysia Plan (1991-1995) with
RM431 million, the 7th Malaysia Plan
(1996-2000) with RM845 million, and
the 8th Malaysia Plan (2001-2005)
with an allocation of RM2.7 billion.
It is estimated that the cost for future
river improvement and flood
mitigation works for the next 15 years
will amount to some RM17 billion.

Flood Mitigation Measures

From the studies that have been
carried out, various structural
(curative) as well as non-structural
(preventive) measures have been
proposed to alleviate flood problems.
Under
structural
measures,
engineering methods are used to solve
the flood problems. The river capacity
can be increased to accommodate the
surplus runoff through channel
improvement, construction of levees
and embankments, flood bypasses,
river diversions, poldering, and
construction of flood storage dams
and flood attenuation ponds, either
singly or in combination.
Non-structural measures, on the
other hand, are proposed where
engineering measures are not
applicable or viable, or where
supplemental measures are required.
They include restriction of
development, land use zoning,
resettlement of population, flood
proofing, and flood forecasting and
warning systems.
Numerous major flood mitigation
projects for urban areas have been
executed. Apart from urban areas, the
aspects of flood mitigation and flood
fighting have also been implemented
in fast-growing agricultural areas
such as the Integrated Agricultural
Development Project (IADP) areas,
namely Perlis IADP, Western Johor
IADP, Ketara IADP, Kemasin Semarak
IADP and Samarahan IADP.
Under the 2 nd Malaysia Plan
(1971-1975), only a sum of RM14
million was spent for flood mitigation
projects. This was followed by the 3rd
Malaysia Plan (1976-1980) with an
expenditure of RM56 million, the 4th

Structural measures are actually

engineering methods which include
the following:

STRUCTURAL MEASURES
(ENGINEERING SOLUTIONS)

Flood Control Dams

These dams are constructed to
retain flood water in order to protect
areas downstream of the dams.
Construction of storage dams solely
for flood control purposes is generally
economically not viable and such
dams are frequently utilised for other
purposes such as water supply. In
addition, dams constructed for
hydroelectric purposes also have a
portion of their capacity allocated for
flood detention.
Among the dams specially
constructed for flood mitigation are
Batu Dam, Semberong Dam, Bekok
Dam and Macap Dam, while irrigation
dams include Muda Dam, Pedu Dam,
Timah Tasoh Dam, Bukit Merah Dam
and Beris Dam. Hydroelectric dams
built by Tenaga Nasional Berhad
include Kenyir Dam, Bersia Dam,
Kenering Dam, Temenggong Dam and
Sultan Abu Bakar Dam.
The Klang Gates Dam is an
example of a dam built for water
supply but also serves as a flood
mitigation dam.
Canalisation And Related Works
Canalisation works include the
widening and deepening of channels
as well as lining the banks and beds
of the channels. They also include the
replacement of undersized structures
such as bridges. These works are
necessary, as the original channels
have become undersized as a result
of the increase in flood flows caused
by development.

BULETIN INGENIEUR

40

Bunding Of Rivers
Bunding of rivers prevents
overtopping and flooding of the lowlying adjacent areas. This option may
give rise to problems of internal
drainage as a result of the bunding.
Bunding an urban area introduces
high flood damage potential, as any
occurrence of flooding as a result of
flood water overtopping or breaching
the bund would be very damaging.
Storage Ponds Of
Flood Attenuation
Ponds such as disused mining
pools can be used for flood storage.
The objective is to divert the flood
water through such ponds and thus
regulate the outflow so that the flood
peaks are attenuated. This strategy
has been used in the case of Batu/
Jinjang Pond Project in Kuala Lumpur
where excess flood water is diverted
from Sg. Gombak to Batu Pond for
temporary storage and from Sg. Keroh
to Jinjang Pond. Water in the pond
will be released slowly back to the
river after the flood flow has subsided
(See Figure 1).
Poldering (Ring Bund)
Poldering is the provision of a ring
bund surrounding the area to be
protected. This is normally carried out
for an area which has high damage
potential but for which the cost on
overall basin-wide protection would
be prohibitive. It includes the
provision of internal drainage for the
area to be protected and the
evacuation of flood water by pumping
during periods of high river flows.
The present strategy of using
structural flood control measures such
as the above has proven effective in
controlling floods and is usually the
only option available for built-up
areas. However, structural measures
usually
incorporate
hard
engineering measures that result in
bigger channels conveying high flows
at high velocities. These measures
incur high costs as well as require
substantial land reserves for the
channel.
Flood Diversion Channel Or Tunnel
Certain river stretches especially
in major city centres, due to intensive
development along both riverbanks,

feature

IRBM has been incorporated into and

will be implemented starting from the
8th Malaysia Plan.

Figure 1 Structural measure using flood detention ponds

can no longer be widened or deepened
to accommodate the increasing flood
discharges through the city. Under
such circumstances, excess flood
water has to be retained upstream in
storage ponds or diverted downstream
through a flood diversion channel or
tunnel. This is being implemented in
Kuala Lumpur where the Stormwater
Management and Road Tunnel
(SMART) Project has become a viable
and innovative solution. The SMART
system, when completed, will alleviate
flooding in the Kuala Lumpur city
centre by diverting large volumes of
flood water from entering the city
centre. The tunnel is designed to
incorporate a stormwater channel and
a motorway for dual purposes. The
motorway section of the tunnel is
expected to ease traffic congestion at
the southern gateway to KL City near
Sungai Besi. This concept is believed
to be the first of its kind in the world
(See Figure 2).

Integrated River Basin

Management (IRBM)
Under the concept of IRBM, the
whole river basin is planned in an
integrated manner and all factors are
taken into consideration when a
certain development plan is proposed.
Factors like zoning for river corridors,
riparian areas, natural flood plains,
conservation of wetlands, storage
ponds, etc. will be taken into
consideration when preparing flood
management plans. The concept of

Preparation Of Guidelines And

Design Standards
Suitable guidelines and design
standards have been prepared,
specifying clear requirements, both
physical as well as technical, for rivers
and their reserves, as well as flood
mitigation and urban drainage
projects. These guidelines and design
standards, if followed strictly by the
public and private sectors, will help
minimise the occurrence of floods.
The Department of Drainage and
Irrigation has published more than 20
Hydrological Procedures as well as the
Urban Drainage Planning and Design
Procedure No. 1 for use as reference
materials and guidelines by all
planners, consultants and other
Government agencies throughout the
country.
Recently in the year 2000, a new
Urban Stormwater Management
Manual (MASMA) has been
published by DID. The Manual has
obtained Cabinet approval for
implementation
commencing
January 1, 2001 and is to be
complied with by all local authorities
and the public and private sectors.

NON-STRUCTURAL MEASURES
(NON-ENGINEERING SOLUTIONS)
Non-structural measures are
employed more for preventing floods
from occurring and with the aim of
minimising losses due to flooding.
These measures are broadly aimed at
reducing the flood magnitude through
the management of catchment
conditions as well as reducing the
flood damage. These measures
comprise the following:

Figure 2 Structural measure using a combination of diversion tunnel and detention

ponds as in SMART project in Kuala Lumpur (stormwater tunnel also functions as
motorway)

BULETIN INGENIEUR

42

feature
Figure 3 MASMA concept using control-at-source solution

The Manual provides control-atsource

measures
and
recommendations on flood fighting
by utilising detention/retention,
infiltration and purification
processes. This will result in a more
harmonious urban environment
thereby enhancing the aesthetic
value of the surroundings as well as
property values (See Figure 3).
Resettlement Of Population
One positive measure to reduce
damage potential as well as loss of
life in flood-prone areas where floods
would not be significantly reduced
by structural measures is to resettle
the population. Since 1971, 1,672
families and 2,715 families have been
resettled in the states of Kelantan and
Pahang respectively.
Flood Proofing
This measure consists of
implementation of protective works
to prevent the entry of flood water
into individual houses and specific
places, for example, by bunding a
building with a wall so that the floor
is not submerged during a flood,
thereby reducing flood damage. In
flood-prone cities like Kuala Lumpur
and Penang, entrances to basement
car parks should incorporate some
flood proofing measures.

Flood Forecasting And

Warning System
The provision of flood forecasting
and warning system is an important,
practical and low-cost measure to
minimise flood losses. Flood forecasts
given early will enable people living
in flood-prone areas to be warned so
that they can evacuate themselves and
their belongings before the arrival of
the flood. This can considerably reduce
flood loss and damage and above all,
the loss of human lives. Following the
1971 flood, telemetric forecasting
systems have been installed in the
major river basins, namely Kelantan,
Pahang, Perak, Sadong, Kinabatangan,
Klang, Terengganu, Besut, Dungun and
Johor, which are susceptible to major
floods from time to time. A similar
system was recently installed in the
Muar river basin in Johor and more
are being planned for another 20 river
systems. VHF flood forecasting
systems have been established in
smaller basins. In river basins which
are subjected to flash floods, little lead
time is available for effective warning.
Therefore flood warning sirens, which
automatically trigger once the flood
level reaches a critical point, have been
installed at strategic locations along
certain urban rivers to alert the local
residents of impending floods with the
aim of minimising flood damage.

BULETIN INGENIEUR

43

Since 1980, flood warning boards

have been erected in the major river
systems. Levels marked on these
warning boards are correlated to the
levels at the observation point and
they enable the residents of the
villages to assess for themselves what
the situation would be like in their
areas, upon receiving information on
the water level through radio
broadcasts, village heads and/or
police. In recent years, a web-based
information system on flood warning
and flood information can be readily
obtained
through
http://
infobanjir.moa.my.
CONCLUSION
Based on the experience
accumulated over the years in
implementing flood mitigation works,
DID is today more conscious of the
need to carry out such projects on a
river basin basis rather than on a
piecemeal approach. This kind of
approach will involve a shift from the
traditional thinking in terms of
controlling flooding through
expensive engineering structures to
the more comprehensive approach of
viewing the solution in terms of
managing flooding by incorporating
structural as well as non-structural
measures. BEM